YOUR BUSINESS 


The Government of Wisconsin 

J HOW IT HANDLES ITS EMPLOYMENT PROBLEMS 

Illustrated 



WISCONSIN CIVIL SERVICE COMMISSION 

Employment and Personnel Department 
of the 

State Government 

1918 









YOUR BUSINESS 


The Government of Wisconsin 

HOW IT HANDLES ITS EMPLOYMENT PROBLEMS 


Illustrated 


WISCONSIN CIVIL SERVICE COMMISSION 

Employment and Personnel Department 
of the 

State Government 

1918 






» 



■. I 


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TABLE OF CONTENTS 


Page 


To THE Citizens of Wisconsin. 5 

The State and Scientific Employment. 7 

The employment department 

Principles of Scientific Employment..,. 9 

Reduces turnovers 

Attracts a higher type of employe 


Makes for a more business-like procedure 
Results in a higher type of service 

The Personnel of the State Service. 13 

Statutory classification 
Functional classification 
Office service 
Field service 
Institutional service 
Maintenance service ' • “ 

Legislative employes - 

Contrasts 
Wisconsin 
A comparison 

The Man and the Job. 25 

Analyzing the job 
Salaries 
Service reports 

Civil Service Examinations. 29 

Not like school examinations 
Practical changes recently made 
Progress in employment tests 
Making up the examination 
Underground criticisms 
Behind the scenes 
Examination aims 

Training in Service. 40 

Better letters 

Developing public accountants 
Improving statistical work 
Helping engineers and firemen 
Coal analysis and sampling 
Service courses 
Encouraging support 
Real cooperation 
Rural highway work 
Plans for the future 


/ 










Page 

Organization of the Civil Service Office. 47 

Office files and records 
List of commissioners 
Answers to questions frequently asked. 

A Knowledge of Civil Service . 52 

Women’s clubs and civil service 
Vocational conferences 
At the state fair 
Essay contest 
In conclusion 





TO THE CITIZENS OF WISCONSIN: 

This bulletin is written for you. 

It is a report to you on work which vitally concerns you 
both as citizens and as stockholders in the public business of 
Wisconsin. 

Today, little difference exists between the efficient manage¬ 
ment of public and of private business. The success of private 
business is measured in terms of the dollar. The success of 
public business is measured in terms of service, i. e., protection 
of public health, conservation of natural resources, agricultural 
development, highway construction and maintenance, improve¬ 
ment of public education, etc. 

In most private business a tangible material commodity of 
standardized workmanship and quality is sold for a given 
price. In government business, personal service, not material 
objects, constitute the commodity. The SERVICE of state 
employes is, therefore, the commodity in which the govern¬ 
ment deals. A standardized and efficient personnel means sat¬ 
isfactory service and thus success in the business of govern¬ 
ment. 

We often wonder how many of the thousands of Wisconsin 
citizens who go through the capitol each month and admire the 
beauty of this great work of architecture, give serious thought 
to what is going on in the offices. To see and to be proud of 
the living and working government of Wisconsin, one must 
look into the offices and into the field and see the employes at 
their different tasks. On the service of these men and women, 
depends the success of the government of our state, of the pub¬ 
lic business of Wisconsin. 

This bulletin is issued that you may know what is being 
done to keep high the standard of this personnel. The Wis¬ 
consin Civil Service Commission is the Employment and Per¬ 
sonnel Department of the state’s business. It wants you to 
become better acquainted with its work. This bulletin will 
help you. 

WISCONSIN CIVIL SERVICE COMMISSION. 

Percy Ap Roberts, President, 

Lewis G. Kellogg, 

F. W. Coon. 

John A. Hazelwood, Secretary and Chief Examiner, 


''State Government is a coopera¬ 
tive business in which every citizen 
is both stockholder and customer.'' 



THE STATE AND SCIENTIFIC EMPLOYMENT 


The Wisconsin Civil Service Commission is to the efficiency of 
the state government what an Employment and Personnel Depart¬ 
ment is to the success of a large private business. 

Public business may learn much from the struggles of successful 
private business. In private business the best thought obtainable 
has been turned to the problems of efficiency and economy, of get¬ 
ting the maximum service with the minimum of cost. Private busi¬ 
ness has experimented and figured results in terms of unit costs. It 
knows whereof it speaks. Keen competition has demanded results. 

The Employment Department 

The organization of private business is divided into departments. 
One of the most important of these is the one which selects, trains 
and has general oversight of employes. Such a department is to¬ 
day considered a necessary part of every well-organized business of 
any size. 

At present, publications abound with statements similar to the 
following made by Oscar Roder in the July, 1917, number of In¬ 
dustrial Management: 

“In the past four or five years, no question has held more 
prominence in the industrial world than the one of employ¬ 
ment and methods of selecting the proper men for given posi¬ 
tions.” 






4 


— 8 — 

• I 

What then, does such a department, whether it be an employ¬ 
ment and personnel department of a private business or its coun¬ 
terpart, a civil service commission of a state or city business, do 
for the organization of which it is a part? ^ 


\ 






— 9 — 


PRINCIPLES OF SCIENTIFIC EMPLOYMENT 


The application of scientific employment principles— 

1. Reduces employment turnovers (changes). 

2. Brings into the organization a higher type of employe, 

3. Makes for a more business-like procedure. 

4. Results in a higher type of service. 


1 

Reduces Turnovers 

Private business considers that there is a money loss in employ¬ 
ment turnovers. This is due to—- 

a. Cost of hiring. 

b. Cost of training. 

c. Reduced production during the training period. 

d. Impaired quality of service during the training period. 


Under the caption “What it costs to Hire and Fire’* in the Literary 
Digest for April 27, 1918, is the following: 

“Every man replaced in any industrial plant costs the- 
management from $10 to $3 00, depending on his skill and 
ability.” 

“While it costs about $10 to replace an ordinary laborer, it 
costs $300 or more to replace a skilled worker of special 
ability.” 

An official of one of the well-known business concerns of this 
country has stated that the cost to it of placing a new clerk on its 
pay rolls is $100. 

President Loree of the Delaware & Hudson Railroad is quoted 
as saying, “It costs a railroad $1,000,000 to break in a new 
manager.” 

In the business of government a similar loss occurs. It shows 
itself, however, not in a decrease of money dividends but rather in 
decreased service and increased cost. In the final analysis, how¬ 
ever, it is just as truly a money loss as it is with the private indus¬ 
trial concerns. 



— lo¬ 


in states and cities not under civil service laws there is a general 
change of personnel with each new administration. In such cases 
there is not only the loss due to the cost and waste accompanying 
the breaking in of a new employe, but there is naturally a decrease 
in efficiency on the part of the old employe who knows that his job 
will soon be taken from him. This same shadow of uncertainty 
stretches back over his whole period of service, lowering the stand¬ 
ard of his work. 

The Wisconsin Civil Service Commission examines candidates for 
state service and certifies only the best. These are protected against 
removal as long as they give efficient service. They are not affected 
by changes of administration. 

W. B. Kemble, employment expert says: 

“A standardizer for one of our large mail houses asserts that 
under a recently applied system of examination and selection 
they have to take on only one person where formerly they 
hired four.” 


2 

Brings Into the Organization a Higher Type of Employe 

Competition may keep out of an organization a very few worth¬ 
while individuals who are averse to submitting to a competitive test. 
On the other hand, however, it is safe to say that a very large num¬ 
ber of worth-while people will refrain from attempting to secure a 
position filled by political appointment. 

The selection of employes on the' basis of merit and fitness and 
through the application of approved scientific employment methods 
attracts those of ability, training and experience, those who have 
faith in themselves. 

In the case of those states and cities with no employment depart¬ 
ment, with no Civil Service Commission, the inauguration of a new 
set of officials with the possible openings caused by the discharge 
of old employes, attracts a vast number of job hunters who believe 
they have a pull, who have confidence in the ability of another to 
get them a job. There are, of course, men of ability in this group, 
but officials are seldom free to choose as they wish under such con¬ 
ditions. Political pressure makes it expedient for them to consider 
weight of influence back of a candidate rather than the candidate’s 
real ability or fitness for the position in question. 


— 11 


This sort of thing does not occur in the management of a well- 
organized private business, neither does it occur in the state or city 
service, administered under a civil service law. 

The highest type of workman is looking for a position that is 
permanent, one that offers possibilities for advancement. 

The Metropolitan Life Insurance Company gives a competitive 
examination to applicants for its many clerical positions. The 
passing mark is 75%. Out of 1443 applicants taking the test 839 
failed. “It is perhaps due to this system of selection that the 
employes of the Metropolitan Insurance Company average 9.3 years 
per position.” 


3 

Makes For a More Business-Like Procedure 

The same standards of service apply to the conduct of public as 
to the conduct of private business. The motive force of any busi¬ 
ness is in its personnel. As is the ton© of the employes so is the tone 
of the organization as a whole and of the service it renders. Busi¬ 
ness-like methods cannot be veneered, over an organization, but 
must be embodied in its heart. They must find seed in the abili¬ 
ties and interests of animated and fit employes. Thus it is that 
scientific employment methods mean so much to real business-like 
procedure. 


4 

Results ill a Higher Type of Service 

Where employes work together year after year an individuality 
of organization develops which becomes a vital part of the life of 
the business. New employes feel it, “catch the spirit of the hive” 
and contribute to the success of the organization. The develop¬ 
ment of such a spirit, such an “esprit de corps” is not possible 
with a periodic shifting of employes and its accompanying uncer¬ 
tainty of tenure. The dominance of the “get-all-you-can-while-it- 
lasts” attitude never gives rise to a wholesome “esprit de corps.” 

When an employe-becomes really interested in the work he is 
doing, sees a future in it and studies and strives to improve him¬ 
self in it, then the attitude of the expert or professional develops, 
resulting in an expert grade of work. The business is the gainer 
when employes develop the professional attitude and strive to be¬ 
come experts. This is as true of public as it is of private busi¬ 
ness. It is only in guaranteed security of tenure and deserved pro¬ 
motion, however, that this attitude finds suitable soil for growth. • 


— 12 — 


Wisconsin has been selecting men and women for a large num¬ 
ber of positions in state service according to the principles of scien¬ 
tific employment since 19 05, when the present civil service law was 
passed. 

Her motto is— 

“The Best Shall Serve the State.” 

That motto is exemplified in the splendid body of employes who 
now carry on the state’s business. The time has now come for 
such extension of this method of selection as will include all non- 
policy determining and non-instructional positions in state service. 











— 13 — 


THE PERSONNEL OF THE STATE SERVICE 


4101 persons are employed by the State of Wisconsin. 

Statutory Classification 

The legislature, by the Civil Service Law of 1905, regulated the 
employment of state employes and established a Civil Service Com¬ 
mission to administer the law, in other words, to act as the employ- 
m^ent department of the- state government. The legislature defined 
the operation of the law by dividing all state employes into services, 
and classes. This is the statutory classification under which the 
Commission operates, an outline of which will be found on page 14. 
This is given that the citizens of Wisconsin may know under just 
what conditions their employment department, the Civil Service 
Commission, works. For the distribution of the different types of 
positions among the statutory classes see page 15. 

From the chart given on page 15, it will be seen that the 
Civil Service Commission, as the employment agency of the state 
government, is given supervision over the employment of persons 
to fill some 2500 state-service positions. 


Functional Classification 

The employes filling these 25 0 0 positions are divided by the 
Commission into four groups, or services as shown below: 



WISCONSIN 

CIVIL SERVICE 







1 





INSTITUTIONAL 

SERVICE 


OFFICE 

SERVICE 

FIELD 

SERVICE 


MAINTENANCE 

SERVICE 

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COMPETiri VE 







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I 



DISTRIBUTION OF STATE EMPLOYES 

June 1918 

According to statutory classification. 




























































































16 — 


Office Service 

The office is the place of the administration of business—the seat 
of directing and correlating business operations. It is the nerve 
cen^r, the brain of the business. 

“The office service includes those positions, the duties of which 
are performed in an office, in connection with the receipt, 
handling, examination, recording, interpretation, care, acknowl¬ 
edgment and treatment of reports, correspondence, requests and 
complaints, together with all papers and records pertaining to 
the activities and functions of the institution, school or depart¬ 
ment with which the office is connected.” 


1037 persons are employed in 
Illustrating the types of positions 
the following: 

Clerk 

Typist 

Stenographer 

Examiner 

Accountant 


the office service of the state, 
included in the office service are 

Auditor 

Statistician 

Actuary 

Secretary 

Advisory Experts, etc. 


Field Service 

If the office service is the nerve center of government business, 
the field service constitutes the nerve ends. The men and women 
in the field service keep the administrative center informed of the 
needs of the people for whose services the government is estab¬ 
lished. They also look after the rendering and distribution of this 
service. 

“The field service includes those positions, the duties of 
which take the incumbent away from the department or insti¬ 
tution office to make observations, gather data, and give as¬ 
sistance in connection with the application and operation of 
the state laws. Part of the time the incumbent may work at 
the home office preparing for his trips or working over data 
gathered on the trips.” 


411 persons are employed in the field service 
Illustrating, the types of positions included in the 
the following: 


Plumbing Inspector 
Conservation Warden 
Forest Ranger 
Dairy and Food Inspector 
Income Tax Assessor 


of the state, 
field service, are 

Factory Inspector 
Oil Inspector 
School Inspector 
Health Officer 


17 



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Attractive surroundings raise the standard of service. 




















— 18 — 


Institutional Service 

Throughout the state are the different institutions established by 
the government. Through them the government is serving the 
people of the state. Those positions classified in the institutional 
service are the ones which in general are peculiar to institutions 
serving or caring for large numbers of persons. 

“The institutional service includes those positions, the duties 
of which have a direct bearing on the operation of state, penal 
and charitable institutions, sanitoriums and state educational 
institutions. The positions included in this service are such 
that experience in the position peculiarly fits the incumbent for 
service in similar capacity in other institutions where such serv¬ 
ices are demanded.” 

A list of these institutions follows; 


State Prison_Waupun 

Reformatory_Green Bay 

Industrial Home for Women_Taycheeda 

Industrial School for Boys_Waukesha 

Industrial School for Girls_I_Milwaukee 

Northern Hospital for the Insane_Winnebago 

Central Hospital for the Insane_Waupun 

State Hospital for the Insane_Mendota 

Home for the Feeble-Minded_Chippewa Falls 

Southern Home for the Feeble-Minded_Union Grove 

Psychiatric Institute_Mendota 

Public School_Sparta 

School for the Blind_Janesville 

School for the Deaf_Delavan 

Workshop for the Blind_Milwaukee 

Tuberculosis Sanitorium_Wales 

Tomahawk Lake Camp__Tomahawk Lake 

Mining Trade School-Platteville 

Normal School-Eau Claire 

Normal School-La Crosse 

Normal School_Milwaukee 

Normal School-Oshkosh 

Normal School-Platteville 

Normal School_'_River Palls 

Normal School-Stevens Point 

Normal School-Superior 

Normal School-Whitewater 

Stout Institute-Menominie 

State University-Madison 






























I 


— 19 


1,69 2 persons are employed in the institutional service of the 
state. Illustrating the types of positions included in the state insti¬ 
tutional service are the following: 

Prison Guard 
Teacher Guard 
Family Officer 
Cook 
Matron 

Maintenance Service 


Steward 
Farm Foreman 
Nurse 
Physician 
Teacher 


State property must be kept in order, repaired and made to 
function as it should. Those engaged in this work are in the main¬ 
tenance service. 


961 persons are employed in the maintenance service of the 
state. 

“The maintenance service includes those positions, the duties 
of which are in connection with the construction, maintenance 
and upkeep of public property, and directly connected with its 
operation.” 


Illustrating the types of positions included in the maintenance 
of the state are the following: 

Janitor 

Elevator Operator 

Engineer 

Fireman 

Skilled Tradesman 

Unskilled Labor 

Superintendent and foreman of construction, maintenance 
and operation of state property. 

Legislative Employes 

In Wisconsin,^ legislative employes are selected according to the 
same principles as are the employes of any state office. The exact 
number is regulated by statute and these are selected as a result of 
competitive examination. Only men are employed in these posi¬ 
tions. 

The following list of legislative positions indicates the limited 
number: 


2 Bookkeepers 

2 Bookkeepers, Assistant 

3 General Clerks 
2 Clerks, Index 

2 Clerks, Journal 
2 Clerks, Journal, assistant 
2 Clerks, Mailing 


— 20 — 


2 Custodians of Document Room 
1 Custodian of Document Room, assistant 
23 Messengers 
1 Messenger, Post-Office 

1 Photostat Operator 

2 Postmasters 

4 Proof Readers 
2 Sergeant at Arms, assistant 
22 Stenographers 
7 Typists 

12 Watchmen, night. Attendants, Policemen, etc. 


Contrasts 

The following extract is taken from a well-known metropolitan 
newspaper for November 16, 1916, and refers to the legislature of 
the state in which the paper is published: 

“The Legislature could save money by employing only such 
clerks as are needed to do its work. Two years ago all previ¬ 
ous records were broken in the number of clerks employed in 
the House and Senate. 

Each of twenty-six senators had eight clerks, and, in addi¬ 
tion, they had forty-two janitors and thirteen pages. This 
was almost two janitors for each senator. 

In the House there were 171 clerks for seventy-six members, 
which was, sufficient to give them two each and throw in nine¬ 
teen clerks for good measure. There were twenty-four jani¬ 
tors and seventeen pages. 

Relatives of members of the Legislature are always looked 
after.” 


Wisconsin 

“I was a member of the legislature in 1903, and again in 1905. 
1 was sergeant at arms of the assembly in 1907, 1 909 and 1911. I 
have been familiar with the work of the legislative employes for 
ten years. While I was a member of the assembly employes were ap¬ 
pointed through political influence. * * * j believe the competitive 
method of selecting employes has resulted in an improvement of over 
100% in efficiency. The present employes are more punctual, bet¬ 
ter qualifled and render better service. Civil Service has the effect 
of securing better discipline. * * * j have been compelled to 

discharge but one man for improper conduct and inefficiency during 
three sessions.” 


W. S. Irvine. 






— 21 — 


A Comparison 

The daily cost for legislative employes for both Senate and House 
in the state referred to in the newspaper extract, was $1,638.50. 
At this rate the 1915 session of the Legislature of Wisconsin would 
have cost for employes alone. 

$3()8,(i02.5a 

The actual cost, however, under civil service, was 


$77,044.50 


Wisconsin is a leader in placing the employment of persons to 
fill legislative positions on a business-like basis. 




— 22 — 


2 


6 

B 


10 


10 


12 


la 


12 


13 


Board oi Aocountancy 
Board of Canvassers 
History CoMaission 

I 

Board of Teachers' Examiners 
Compensation Insurance Board 
Athletic Comaission 
Board of Dental Examiners 
Layr Examiners 

Board of Optometry Examiners 
Executive Department 
Land Department 
La'N Library 
Board of Pharmacy 
Pevisor of Statutes 
Fire Marshal’s Department 
Printing Board 

Teachers*. Insurance and Retirement Fund 
Board of Medical Examiners 
Treasury Department 
Agricultural Experiment Association. 

Attorney General's Department 
Civil Service Commission 
Hi ghviay Commi s s i on 
Board of Vocational Education 
Council of Defense 

Board of Public Affairs 
Banking Commission 
Board of Education 
Board of Normal School Regents 
Supreme Court 

Adjutant General's Department 
] Insurance Corrxnission 
Board of Control 
Grain and Warehouse Commission 
Treasury Agent 

Geological and Natural History Survey 
Free Library Commission 
Public Instruction 

Dairy and Food Cornmission 
Oil Inspection Department 
Department of State 
BoELrd of Health 
Historical Society 
Railroad Commission 

Department of Agriculture 


12 


12 


16 


17 


17 


18 


19 


20 


21 


27 


27 


29 


31 


32 


32 


36 


38 


39 


46 


46 


47 


59 


60 


94 


Industrial Commission 

Public Property 


97 


118 


Conservation Commission 

Tax Commission. 


(lMet.tfOC.S INOW4TRIAV. Pswa* P A N T , R At k R O K Q Z UTll-lTICS ANO&AMiTAItV D © piT t mCTl t of Engineering 


RELATIVE SIZES OF STATE DEPARTMENTS 

June 1918 

Non-salaried commissioners and members of boards are included in the 
above figures and all classified and unclassified employes. 







































































— 23 — 


0 


EDUCATIONAL INSTITUTIONS 


iL Mining Trade School 


32 


Eau Claire Norraal 


38 


44 


50 


51 


54 


54 


57 


70 


Platteville Normal 
Whitewater Normal 
Superior Normal 
La Crosse Normal 
River Falls Normal 
Stevens Point Normal 
OshXosh Normal 

Stout Institute 

Milwaukee Normal 


99 


University. 1 233 

PENAL AND CHARITABLE INSTITUTIONS 

2 Industrial Home for Women 
4 Workshop for the Blind 
5| Southern Home for Feeble Minded 
Tomahawk Lake Camp 

Central State Hospital 

Industrial School for Girls 
Reformatory 

School for Deaf 

Industrial School for Boys 
School for Blind 
Public School 

State Prison 

Tuberculosis Sanatorium 


25 


35 


47 


65 


66 


66 


68 


79 


107 


122 


125 


Northern Hospital 
State Hospital 


177 


Home for I 
Feeble Mindedl 


RELATIVE SIZES OF STATE INSTITUTIONS 
June 1918 

The figures include both classified and unclassified employes. 




















































— 24 — 


DISTRIBUTION 

OF 

ALL EMPLOYES IN STATE SERVICE 
June 1918 


Ik 


Office Service 
Clerical Group 

Clerks_:_249 

Stenographers _ 292 

Typists and Dictaphone 

Operators _ 30 

Messengers_ 20 

Miscellaneous_ 8 

Specialist Group 
State Officials and Paid 

Commissioners_ 38 

Officials and Commissioners 

(no regular salary)_ 141 

Accountants_ 20 

Actuaries _ 4 

Attorneys and Judges_ 14 

Engineers and Draftsmen_49 

Examiners _ 32 

Librarians_ 44 

Proof Readers_ 3 

Scientists_ 17 

Secretaries _ 27 

Secretaries (Executive) and 
Deputies of Commissions 27 

Statisticians _ 6 

Miscellaneous_ I 8 

Field Service 

Assessors of Incomes_ 47 

Conservation Wardens_ 59 

Engineers, Professional_ 44 

Forest Rangers and Park 

Supts. _ 11 

Gage Readers_.*_ 37 

Inspectors— 

Board of Health_ 13 

Dairy and Food_ 22 

Department of Agricul¬ 
ture - 15 

Department of Engineer¬ 
ing - 9 

Fire Marshal_ 5 

Grain and Warehouse_ 2 0 

Industrial Commission__ 15 

Deputy Oil- 3 6 

Public Instruction_ 13 

Institutional Agents_ 14 

Special Treasury Agents_ 27 

Supervisors of Dairy Tests_ 16 

Miscellaneous Inspectors_ 8 


Tiistitiitioiial Service 

Penal, Charitable and Educa¬ 
tional 


Institutional Heads_ 26 

Institutional Deputies and 

Assistants _ 8 

Attendants _250 

Bakers, Cooks, Chefs and 

Stewards_ 41 

Cell House Keepers_ 8 

Family Officers and Teach¬ 
ers _ 11 

Foremen and Supervisors— 24 

Guards _ 58 

Housekeepers_ 7 

Laundrymen_ 3 

Matrons- 51 

Nurses_ 24 ^ 

Physicians- 15 

Teachers_1155 

Teacher Guards_ 4 

Miscellaneous_ 7 


Maintenance Service 
Superintendents and Admin¬ 


istrative Heads_ 10 

Capitol Guides_ 2 

Elevator Operators_ 13 

Engineers_ 58 

Engineers’ Helpers_ 11 

Firemen_ 21 

Foremen _ 29 

Foremen, Farm_ 6 

Gardeners, Farmers, etc_ 11 

Janitors- 8 0 

Laborers (Competitive)_ 21 

Police and Nightwatchmen_ 27 

Skilled Trades_112 

Teamsters and Draymen_ 5 

Telephone Operators_ 4 

Miscellaneous_ 3 

Laborers (unskilled)_548 


Total_4138 

Deducting those enumerated 
two or more times_ 37 

Net Total_4101 































































— 25 — 


THE MAN AND THE JOB 


In employment a square peg in a round hole is an expensive 
misfit. It is not difficult to see that the more an employment de¬ 
partment of any business knows of the duties of the positions which 
it is called upon to fill, the more successfully it can select candi¬ 
dates qualified to do the work of these positions. 

Analyzing the Job 

During the past year the Commiss’on has secured reports on the 
duties performed by each regular employe in the classified service 
of the state. The following questions were included among those 
answered by these employes. 

Itemize all the duties you perform in connection with the posi¬ 
tion you hold. 

Outline the work of a typical day showing duties performed and 
approximate distribution of time. 

State definitely the purpose of the work of your particular posi¬ 
tion. 

What duties do you perform on your own initiative? 

For what work of other employes are you responsible in a super¬ 
visory capacity? 

Give the name and title of your immediate superior. 

A careful review of these reports followed by a study of the wo”k 
of the departments, their organization and particular needs has en¬ 
abled the Commission to secure a very definite and workable knowl¬ 
edge of the nature of the various types of positions for which it 
examines. This study has already had a marked effect on the 
conduct of examinations. 

As the employment and personnel department of state govern¬ 
ment, the Civil Service Commission is interested in seeing ^very 
employe properly classified, properly paid, and doing the work he 
is best qualified to do. This is business efficiency. 

It is inefficient to allow a stenographer to do routine clerical 
work. It is also inefficient to permit a low grade clerk to be put 
at tasks beyond his ability. A scientific classification, effectually 
carried out, eliminates misfits and increases efficiency through a 
v^ell worked out system of promotions within the service. 



— 26 — 


/ 


Salaries 

The law gives the Civil Service Commission power to fix salaries 
in only a few cases. A big factor, however, in the quality and 
quantity of work done by employes as well as in their attitude, is 
salary. For the good of the service those doing the same grade 
cf work in an equally satisfactory manner should receive the same 
salaries. This is just and leads to the best service. 

Although the Civil Service Commission has no authority to carry 
out the application of this principle, yet appointing officers in gen¬ 
eral are attempting to follow the spirit of this idea. As is natural, 
they turn to the Civil Service Commission for information as to 
what is a just and appropriate salary for a given employe. In order 
to give this information intelligently, the Commission must have 
made a thorough study of the position in question and have stand¬ 
ards which it can apply to the position. The Commission is now 
able to do this in a scientific and just fashion for the majority of 
positions in the state service. These standards are established as 
a result of the study, not only of the public service of Wisconsin 
but also of the public service of other states and cities, as well as 
of the services of private corporations. 


At a meeting of the Civil Service Commission in June, 1918, the 
following resolution was passed: 

“RESOLVED: That the Wisconsin Civil Service Commis¬ 

sion formally request the Board of Public Affairs to cooperate 
with it in taking such steps as are necessary to complete the 
new classification of positions in the state service and to work 
out adequate and just salaries for these positions, together 
with a standard policy of promotions, and resolved further, 
that such classification and standardization of salaries be put 
in shape to present to the legislature at the next regular ses¬ 
sion.” 


It is hoped that before another year the Commission can report 
just and scientific salary standards established for all positions in 
the state service, together with a proper classification of every em¬ 
ploye in the service. 


Service Reports 

The Commission secures reports on the service rendered by all 
employes coming under the civil service law. In case of a question 
arising as to an employe’s work where complaint is made, these 
service reports are of great value. When an employer speaks 
well of an employe year after year, and then suddenly discovers 
that his work is unsatisfactory, the complaint assumes an entirely 




— 27 


different aspect than had the reports indicated for some time a lack 
on the part of the employe. These service reports also serve as a 
substantial evidence in determining promotion. This form is 
planned to serve the interests, not only of the state, but also of the 
employe. Marked variations from “standard” are carefully in¬ 
vestigated. 

The Commission is frequently asked for information covering the 
Qualifications, experience, education, salary, length of service for the 
state, age, etc. of those in the service. The Commission keeps its 
records up-to-date and its statistics are carefully studied and prove 
of great value in suggesting means of improving its methods. It 
keeps a history card on every person in the service. 


28 



Game wardens must be men of physical endurance. 











— 29 — 


CIVIL SERVICE EXAMINATIONS 


Not Like School Examinations 

The examination considored as ideal by the Wisconsin Civil Serv¬ 
ice Commission, is materially different in type from that of the 
average school. Our examinations aim to test practical ability, 
grasp of fundamental principles, capacity for growth and fitness for 
the everyday work of the position in question instead of testing 
the acquisition of a large number of facts. The Commission makes 
no self-fiattering boasts. It does, however, wish to make clear that 
it is continually studying the subject and making such changes in 
its examinations as seem desirable. 

The Commission is endeavoring to improve its examinations by 
comparing the work done by those in the state service as shown by 
their “Service Records" with the showing they made in the exami¬ 
nations, by which they entered the service. This puts the Com¬ 
mission in a position to see just what parts of an examination are 
the most telling in bringing out a candidate’s efficient and practical 
grasp of duties and operations of the position in question. It is an 
excellent method of sizing up the effectiveness of a particular exam¬ 
ination. This is set forth to show the thoroughness and care with 
which the commission is continually endeavoring to improve its ex¬ 
aminations. 

As a result of the study that the Commission has made of the 
duties of each type of position in the state service it is better able 
to base its examinations on the specific duties that candidates will 
be called upon to perform if they enter the service. 


Practical Changes Recently Made 

During the past biennial period the Commission has made a num¬ 
ber of changes in its stenographic examinations of which the follow¬ 
ing are suggestive: " 

Arithmetic has been eliminated from stenographic examinations. 
Very few stenographers are called upon to make use of arithmetic to 
any great extent and when they are, it is accuracy that counts, 
rather than a knowledge of the various arithmetic processes. The 
Commission endeavors to reduce its examination to the minimum of 
complexity. 



30 



/ 


A civil service competitive examination. 























































— 31 — 


During the past year the Commission has also made changes in 
its stenographic examinations that give a much greater propor¬ 
tionate weight to accuracy than to speed. The majority of steno¬ 
graphic positions in the state service demand only an average speed 
of dictation coupled with a high degree of accuracy. 

These are suggestive only of a large number of practical changes 
that have been made in the various examinations given by the Com¬ 
mission. 


IT-ogress in Employment Tests 

The judging and rating of human ability and fitness for certain 
types of work is a most difficult task. It is a task, however, that is 
being given the most serious consideration today by the vocational 
schools, industrial concerns and by all up-to-date employers of 
labor. Some of the leading scientists of the day are making a 
thorough study of the subject. This all indicates the importance of 
scientific methods of employment. The Civil Service Commission 
keeps in touch with what is being done along these lines and during 
the past year has tried out some of the more common tests for cer¬ 
tain types of ability. It first tries these out as a separate part of the 
regular examination, informing candidates that the tests will in no 
way effect their marks in the examination. The Commission then 
checks up the candidates’ ranks on these tests with their showing 
in the various parts of the regular examination and as a result of 
this comparison determines the value of these tests and for what 
parts of the regular examination they might well be used. 


Making Up the Exaniiiiatioii 

The Commission secures the assistance of experts in making out 
examinations and marking the answers to them when more or less 
technical knowledge is required. In all cases, however, this work 
is done under the direct supervision of the Commission. 


Ungrounded Oiticisms 

Even a mechanical instrument for the measuring of physical 
strength will not give a reliable measure of a person’s strength, 
unless that person puts forth his best effort in the test. It some¬ 
times happens that candidates of real ability fail in our examina¬ 
tions simply because they do not take them seriously enough. In 
these cases it happens that such candidates, and their friends, 
criticize the examination on the grounds that a test which persons 
of this recognized ability could not pass, surely must be worthless. 


32 



A STRENGTH TEST 
These instruments never lie. 












•ei7 i»i» 

EXAMINATIONS 

The above diagram shows the number of candidates examined each month 
by the civil service commission. For candidates for labor and 
noncompetitive position not included above, 
see page 38. 

























































34 


The Commission knows of efficient employes who have entered civil 
service examinations and gone at them in such an indifferent or hur¬ 
ried fashion that their papers were a disgrace to them and no more 
represented their real ability than might the paper of a really 
inefficient candidate. The Commission must in its rating of the 
written examination, take it for granted that each candidate is doing 
his best. The examination is not a measure of weight of brains, 
but of brains in action, and unless the candidate makes an effort to 
bring about the best results, his showing may be far below that of a 
person of less ability but of greater determination. 


Behind the Scenes 

A typical examination consists of the following parts: 

1. Practical questions 

2. Experience, training and personal fitness, determined 

from 

Application blank 
Experience paper 
Vouchers 
Oral interview. 

The weights given these two parts are indicated in connection 
with the write-up of each position. ' 

Practical Questions—The practical questions are answered in 
writing. These questions relate to matters having a direct bearing 
on the duties of the position for which the candidate is trying and 
are carefully planned to fairly test the capacity and fitness of candi¬ 
dates to discharge the duties of the office or employment sought. In 
grading these papers the ability, grasp and care with which candi¬ 
dates discuss or handle the problem determine their rank. Super¬ 
ficial cramming cannot take the place of thorough training. 

Experience—Candidates are permitted to write the account of 
their experience at home at their leisure. This gives them a chance 
to present carefully any experience they have had which has a bear¬ 
ing upon their fitness for the position in question. 

Vouchers—Several persons named by the candidate on his appli¬ 
cation blank are asked certain definite questions concerning the can¬ 
didate and are asked to state their opinions of the candidate’s fitness 
for the position in question. As former employers are generally 
written to, this part of the examination also serves as a check on 
the candidate’s experience. In cases of doubt, additional persons 
are written to for information. " 


— 35 


WISCONSIN CIVIL SERVICE 

- d Madison, Wis., 

^ _ 


Dear Sir or Madam: 

We are in receipt of the application of 

of-for the positwn of_._j(^X,,C?C^^WvCX4=A^v^. 


. _Svv^!vcdL. 


we are in receip 

f-lor me position ol_._\AX^ 

The candidate employed as_ 


by- 



.from_ 




Your name appears in the candidate’s application as a reference. You are respeclTully requested to 
answer carefully the following questions and to return this sheet in the enclosed stamped envelope. Do 
not fail to return this blank with your signature and address. Avoid allusion to religion and politics. Your 
failure to make any statement must be understood to indicate your unwillingness to endorse 
the candidate. 

Your communication will be treated as confidential. 


WISCONSIN CIVIL SERVICE COMMISSION. 

1. Mow long have you known the candidate? __ 

2. Are youYelated to the candidate?./^^^__lf so, state the relationship.__ 

3. Does the candidate drink?.If so, to what extent?. 

4. What is the candidate’s reffutation in the'eommunity in which he lives?. 

^ J / ^ 

5. Does the candidate pay his bills?_»_6. Is he trustwo^hy?__ 

7. If you have employed the candidate, please state: ^alarvA^^f^^^._; promotions.. 


cause of leaving 


etails are requested) 


8. State fully your views of the candidate’s fitness with respect to: 

(a) Skill (proficiency.(f) Punctuality 

(b) Carefulness__(g) Quality of work 

(c) Cooperation_ _(h) 'Quantity of work 





(d) General efficiency T. ..^TTv...(i) Dependability 

(e) Initiative_.. (j )• Personality 

9. In which of the above mentioned points is the candidate likely to prove deficient? 

10. Oa,what other fjittsjdo you base your judgme^ of the candidate’s fitnes^ for the position? 






(Continue on back of tKi/ sheet) 

I certify, on honor, that the foregoing answers and statements are true in every particular to the best 
of my knowledge and belief. 


Date. 


/ O 







Occupation 


\ 













































— 36 — 




Oral Interview—The oral interview is intended to take into ac¬ 
count personality, manner and general appearance. It also consti¬ 
tutes in a way a check on the other parts of the examinations. The 
examiner looks for certain definite things in the manner and per¬ 
sonality of the candidates. Although the examiner may ask the 
candidate questions concerning his experience, it is done simply as a 
basis for conversation. In the oral interview experience carries no 
weight. 


WISCONSIN CIVIL SERVICE 


ORAL INTERVIEW 


to determine 


PERSONAL FITNESS ONLY. 



Note. —Do not consider experience in filling out this form. This interview can be given satisfac¬ 
torily without asking anything concerning the candidate’s experience. Ask the candidate questions 
about the work, his likes and dislikes, present ambitions, or any other matters which will tend to bring 
out the characteristics outlined below. Place a check mark, or if in doubt, a (?) in appropriate place, 
or, if you prefer, write a full description of the candidate’s personal qualifications on the back of this sheet. 


CHARACTERISTICS 


(As determined at the oral interview) 


MOVEMENTS; 


PHYSIQUE: 


PERSONALITY: 



alert.. 

average.. 

slow.. 

. 

.{ ) 

-( ) 

. ( ) 

robust.. 

average. 

frail,. 

...O^ 

-. ( ' 

) 

positive. 

pleasing. 

disagreeable. 

--( ) 



. ( ) 




--( ) 


BEARING; 

well-poised. 

average.... 

dilTident. 

.. .-(/T 

_( ) 

) 

. ( ) 

CONVERSATION: 

commuoicalive.. 

reticent. 

over-talkative. 

...( ^ 
...( ) 

...( ) 

. ( . ) 

OTHER QUALITIES: 

initiative.. . 

enthusiasm_ 

Stand- 
Bclow ard 

--()() 

-.( ) ( ) 

Above 

( >T 
(/-r 

conceited. 

.( ) 

straighlforward. 


spirit of t'scrvicc.... 

-.( ) ( ) 


APPEARANCE: 


MENTALITY: 


courtesv.. 

-.( I ( ) 

( 






















































I 


— 37 — 


Exaiiiiiiatioii Aims 

In the conduct of an examination, the Civil Service Commission is 
guided by the following principles: 

I. Practical questions should be based on the duties actually per¬ 
formed by those occupying the position in question. 

Each examination is considered by itself. The secretarial 
clerk must be proficient in English, so that the letter sent out 
by him from the department in which he works, will be a credit 
to the State of Wisconsin. Thus, in the examination for the 
position of secretarial clerk, ability to use good English is an 
important factor. 

The carpenter, however, is not selected as a possibility for 
state service because he knows the rules of grammar and can 
express his thoughts in beautiful English, but rather because he 
knows the principles of woodworking and building construction. 
His use of English is practically a negligible factor and is so 
considered in the examination. In other words, while much 
attention is given to use of English in examinations for secre¬ 
tarial clerk, practically no attention is given to it in the exam¬ 
ination for carpenter, so long as the candidates show ability to 
understand others and express their own thoughts in an in¬ 
telligible fashion. Much thought and care is given to their 
ability in the duties which they will perform as carpenters. 

In the examination for assistant attorney general, a knowl¬ 
edge of the principles of law, and the methods of attacking 
legal problems and analytical ability are the factors that count 
and this knowledge and ability is tested out by problems which 
will actually confront the candidate, provided he secures the 
appointment. In working out the problems he is put as nearly 
as possible under the same conditions as those under which he 
would be placed if he were actually working in the office of 
the attorney general. 

II. Working conditions, as nearly as possible, should be similar to 
those met in the actual duties of the position in question. 

This means that candidates should not be expected to re¬ 
member things which under ordinary conditions of service they 
would not be expected to remember, but could find in a refer¬ 
ence book. 

In large examinations, where there is a tendency to nervous¬ 
ness on the part of candidates, every effort possible is made to 
relieve the strain of the examination and put candidates at their 
ease. 

Competitive Examination Data for Biennial Period 


Number of examinations held 

Number of applicants- 

Number examined- 

Number passecJ_ 

Percentage passed- 


From July 1, 

Prom July 1, 

1916, to 

1917, to 

June 30, 1917. 

June 30, 1918. 

86 

81 

2932 

3025 

2552 

2659 

1545 

1231 

61% 

46% 







— 38 — 


Different Competitive Exainiiiatioiis Held 
July 1, 1916—-June 30, 1918 


Accountant 
Assessor of Incomes 
Actuary 

Auto License Inspector 
Baker 

Bookkeeper and Journal Clerk 
Cadet 

Caretaker of Cottage 

Carpenter 

Chemist 

City Sealer 

Clerk 

Cook 

Custodian 

Deputy Conservation Warden 

Deputy Oil Inspector 

Dictaphone Operator 

Draftsman 

Editor 

Electrician 

Engineer, Steam 

Family Officer & Matron 

Famiy Officer & Teacher 

Farm Foreman 

Fire & Casualty Examiner 

Fireman 

Food Inspector 

Foreman Tailor 

Foreman, Univ. Grounds 

Gardener 

Greenhouse Man 

Guard 

Guard, Teacher 


Insurance Examiner 
Laborer, Capitol 
Male Deputy 
Mason 
Matron 

Matron & Dietitian 

Machinist 

Mechanician 

Meat Cutter & Cook 

Messenger 

Midshipman 

Night Watch 

Nurse 

Nurse, Student 

Painter 

Plumber 

Postmaster, Legislature 
Probation Officer 
Proof Reader 
Sergeant at arms. Asst. 

Service Employe 
Steamfitter 
Steamfitter’s Helper 
Stenographer 

Supervisor of Home Economics 
Supervisor of High Schools 
Supt. Free Employment Bureau 
Teacher, Institutional 
Tinner 
Typist 

Veterinarian, Asst. 

Weigher & Prober 
Woman Deputy 


Other Than Competitive Examinations 

Noncompetitive Examinations.—Owing to the difficulty of securing 
persons to fill the some 250 positions of attendant at the state 
hospitals the position has been classified as noncompetitive and 
thus does not enter as a factor in determining the figures given 
on page 37. Candidates for these positions are not required to 
take a competitive examination. 

Labor.—A register of applicants for labor is kept at the office of the 
civil service commission. Institutional heads are permitted to 
employ labor without certification from the civil service com¬ 
mission. Such employment is however reported monthly to the 
commission. Capitol labor is certified from competitive lists. 
Only capitol labor is included in the foregoing examination 
statistics. 

Student Assistants.—Because of its temporary, part-time and inter¬ 
mittent nature, student help at the educational institutions was 
classified by the commission as “Exempt.” The name of every 
student thus employed must be reported to the civil service 
commission before salary vouchers will be honored. These posi¬ 
tions are exempted from examination conditions. 


# 


39 — 


Appointments 

The total number of separate employments made during the 
biennial period under the provisions of the civil service law is 8,8 66. 
This figure includes every case of employment by the state no matter 
for how short a period. Each repeated employment of the same per¬ 
son figures in the total. 


The following is a list of persons who have assisted the Commis¬ 
sion in conducting examinations during the Biennial Period ending 
June 30, 1918. 


Anderson L.-Chief Actuary, Ins. Com. 

Brown, George-Index Clerk. 

Burhop, William-Sec’y Compensation Ins. Bd. 

Coles, R. M-Warden, State Reformatory. 

Copp, Tracy-Teacher. 

Cosgrove, T-Woman Deputy, Indus. Com. 

Dodge, B-^_Asst. Chief Bridge Engineer. 

Dorman, Herbert_Asst. Engineer, Capitol Plant. 

Downing, William-Sup. Weights and Measures. 

Eaton, E. T—-i-Probation Officer. 

Hambrecht, George-Chairman, Indus. Commission. 

Harrison, R. S_Proof Reader. 

Hipp, Grady_Actuary. 

Hoeveler, John A_,_Illuminating Engineer. 

Holst, C. A-Capitol Guide. 

Jones, D. L-•-Journal Clerk—Legislature. 

Jostad, B. M._._Probation Officer. 

Kiekhofer, Benjamin_Secretary Board of Public Affairs. 

Keown, B. McA-Chief Engineer, Indus. Com. 

Kleuter, Harry-Chemist. 

Lamb. Francis-Secretary, Board of Education. 

Lee, Oscar- Supt. Indus. School for Boys. 

Mathews, C. C-Statistician. 

Matsdorf, Martin_Capitol Police. 

Miller, H. L_Prin. Univ. High School. 

Muehlstein, W. C_Bldg. Inspec. Indus. Com. 

Norgord, C. P_Commissioner of Agriculture. 

Ovitt, A.-Chief Clerk, Oil Inspec. Dept. 

Palmer, Dr. T. S-Bureau of Biol. Survey, Wash. 

Purcell, H. E-City Probation Officer. 

Qualey, G._Service Employe. 

Regan. Katherine-Teacher, Madison High School. 

Reynolds, Paul_Statistician. 

Seals, B. H-Electrician. 

Smith, R. W-Supervisor of Wts. and Measures. 

Solenstein, R. T-Asst. Engineer, Indus. Com. 

Swett, Maude-Asst. Secretary Indus. Com. 

Tormey, Julia_Teacher, Madison High School. 

Walker, R. A-Head M. H. S. Comm. Dept. 

Ward, B. C_Accountant. 

West, Capt. M_Asst. Prin., M. H. S. 

Witte, E. E-Secretary Industrial Commission. 

Wylie, P. M-Attorney. 













































40 


TRAINING IN SERVICE 


In our last biennial report we quoted the following from Mr. 
Joseph Feiss of the Clothescraft Company of Cleveland: 

“The main part of scientific employment begins after the 
act of hiring has been completed.” 

The truth of this statement is appreciated today even more than 
it was when the statement was made in 1915. No employe is 
giving the service of which he is capable. It has been estimated by 
experts that ho rarely reaches 75 % real efficiency without special 
direction and the right interest, inspiration and working conditions. 
If the state is really interested in securing the maximum of service, 
it must provide not only for getting the people into the service but 
for developing them after they are in the service. 

In the last report of this Commission an account was given of the 
beginning of the plan to increase the efficiency of those in the 
service. The results have been encouraging. The Commission be¬ 
lieved that the actual instructional work, lectures, etc., should be 
carried on by the agencies of the state government, equipped to do 
this. The Civil Service Commission acts as guide or director of this 
work. The agency equipped to do this work, is the University. 
Largely then, through the agency of the Extension Division of the 
University, this work has been carried on. The State Engineer’s 
Department has also assisted in working with the engineers and fire¬ 
men of the state institutions. 


Better Letters 

The first course offered by the Extension Division to state em¬ 
ployes under the direction of the Civil Service Commission was that 
in “Effective Correspondence” given by Prof. E. H. Gardner of the 
School of Commerce, as instructor. 

As set forth in the announcement, the course was arranged to 
meet in a practical way the needs of the state service. It was aimed 
to develop a more intelligent comprehension of the problems that 
must be met in making correspondence effective. It resulted in a 
more sympathetic cooperation with departmental officers in getting 
out letters of which the department could be proud. The course 
was offered to state employes free of charge. For those who 



— 41 — 


handed in written work for correction the Extension Division made 
a charge of $2.50 for the course of ten lessons. The meetings were 
held at the Capitol once a week. The average class attendance was 
sixty. During this course, one of the main topics of discussion with 
the clerks and stenographers of the Capitol was effective letters. 
Many parts of the completed letter that before had received scarcely 
any attention on the part of some, now became to them matters of 
importance. The enthusiasm of those taking the course and the 
suggestions they threw out to others had a very material effect for 
good upon the entire office service. 

Developing Public Accountants 

Later the Civil Service Commission made arrangements with the 
Extension Division to offer a course in accounting for the benefit of 
those in the Wisconsin state service. Meetings were held once a 
week in connection with this course. The following topics in public 
accounting were announced for discussion: 

Revenue and Expenditures of the State Government 

The Accounting of the Fixed Asset of a Sovereignty 

Balance Sheets of a Public Corporation 

Cost Data for State Administrative Purposes 

Public Store Keeping 

State Pay Rolls 

Biennial Reports 

Improving Statistical Work 

A course in elementary statistics was planned and conducted dur¬ 
ing the past year to meet a popular demand on the part of those in 
the state service who desired instruction in the handling of statisti¬ 
cal data and who wished a broader and more comprehensive knowl¬ 
edge of the field of statistics. The course was planned to be of value 
to those who had anything to do with the study or making up of 
reports or with the handling of data used in making reports. It 
v/as also arranged to prove suggestive and helpful in the interpre¬ 
tation of charts, diagrams, curves and tables found in the popular 
and technical magazines. The subject matter was presented in a 
practical manner, with many illustrations. It covered the field with 
which statistical clerks should be familiar, and included exercises in 
the indivdual handling and working out of statistical data. 

The course was conducted by the Extension Division with the as¬ 
sistance of the following statisticians: 

L. W. Hutchcroft, Board of Health 

Geo. C. Mathews, Railroad Commission 

C. E. Schreiber, Railroad Commission 

William Burhop, Compensation Insurance T'oard 

Paul N. Reynolds, Tax Commission 

B. R, Buckingham, Board of Education 


— 42 


Helping: Engineers and Firemen 

“The annual school of power-plant engineers held by the Wiscon- 
sinsin Civil Service Commission and the Department of Engineering 
has in the two years of its life shown itself to be of such value to 
the service that it is now looked upon as a fixed institution. The 
sessions of the school are held at Madison where there are two 
engineering plants under state control: the capital power plant and 
the central heating plant of the university. The school is held in 
the summer when the work is lightest for the engineers and when 
they can most easily leave their plants. The meetings take place 
in the capitol building. The state pays the expense of the chief 
engineer from each institution under state control, and the boards 
and departments concerned feel that it is a profitable investment. 
The sessions continue for three days. There is a roll call at the 
opening of each session. Everything is conducted in a business-like 
way. Interest and earnestness are felt from first to last. It is an 
educational feast of give and take. 

“The program this year included the following'topics: 

Address of Welcome by the Governor 
Cooperation in the Service of the State 
Some Principles of Safety and Fire Protection 
What Engineers Have Done in Extension Courses 
Some of the State Power Plants (illustrated) 

Heating and Ventilation 
Illumination and Safety (illustrated) 

What the School Stands For 

Demonstration of Coal Sampling and Analysis 

Demonstration of Fire Pumps 

The Engineer in Public Service 

Duty of Engineers to the Board 

A New Conception of Public Duty 

Coal Sampling and Analysis 

“As was natural, one of the subjects of most vital interest was 
that of coal, and the fact that the state buys its coal on the heat unit 
basis served to center this interest on its sampling and analysis. 

“The chemist of the capitol power plant demonstrated the method 
of sampling coal, using a new sampler, a number of which have 
been ordered for use in the state institutions. The engineers must 
secure samples from each car of coal received and send them to 
Madison for analysis. It was impressed upon them that they must 
know how to get a fair sample, that they must know how to crush it, 
quarter and requarter it and prepare it for shipment. Very de¬ 
tailed instructions were given as to the process. 

“Not only did the men receive instruction on sampling, but they 
were taken to the laboratories where the chemist explained to them 
in full, with demonstration, the process used in the analysis of coal 




43 



WISCONSIN’S CHIEF POWER PLANT ENGINEERS AT SCHOOL 
A practical lesson in coal sampling for the men who determine Wisconsin’s coal bills. 












— 44 — 


that is sent in from the institutions. This gave the engineers a 
clearer idea of their part in the process as a whole, increased their 
interest and brought home to them with added force the fact that a 
successful analysis depends upon a fair and careful sampling. The 
engineering department believes that letting an employe in on the 
problems of his co-workers and of those above him in authority leads 
to growth and stimulates cooperation. 


Service Courses 

“As a result of last yeap’s school and of the need felt for keeping 
up the good work started and of carrying through the year the same 
spirit of progress, the University Extension Division was asked to 
cooperate in arranging a special course of study for state power 
plant engineers and firemen. The matter was given very careful at¬ 
tention by the Civil Service Commission, the Engineering Department 
and the Extension Division. Professor E. M. Shealey represented the 
Extension Division at the conferences held and proposed the course 
of study which follows. The individual courses are known as 
“service courses” because they have been approved by the Civil 
Service Commission and the Engineering Department. Thosp who 
finish them have a special record made of the fact on the books of 
the Civil Service Commission, and in case of promotional examina¬ 
tions, credit is given for the work thus done. A special certificate 
issued jointly by the Civil Service Commission and the Extension 
Division is also given on completion of a “service course.” 



Wisconsin Civil Service Commission 


Certifies That 


John Roberxs 

Has Satisfactorily Completed The SERVICE COURSE In 

Steam Boil,ers 


As Approved by the Civil Service Commission of the State of Wisconsin, and as 
Prepared and Conducted by the Extension Division of the Universitv^of Wisconsin. 

























45 


“The course of study begins at the bottom, is progressive and gets 
somewhere in the end. In other words, it has a definite plan that 
gives a well-rounded treatment of the problems of power-plant 
operation. In a much condensed form it follows the same scheme 
that is found in a regular course in a technical school. It also 
provides for all grades of ability, is fiexible and makes it possible for 
an engineer or fireman to enter at any point at which he has the 
ability and experience to begin. The individual courses comprising 
the complete course of study follow: 

“Course 1. Practical hand firing. This course written in 
the simplest possible language is intensely practical and 
teaches the manual operations of firing without references to 
any theory of combustion or any calculations. It shows how 
to obtain the very best results in efficiency and smoke preven¬ 
tion with hand fired boilers burning soft coal. 

“Course 2. Steam boilers. The course in boilers deals with 
the selection, installation, management and testing of boilers. 

“Course 3. Heat. The course in heat is planned particu¬ 
larly to teach the applications of heat energy to the uses of man 
in power production and in industrial processes. The theories of 
heat are brought out in very simple form and their practical 
application shown. 

“Course 4. Steam engines. This is a practical course for 
operating engineers and to this end it deals with the operation 
of practically all classes of modern engines. It treats fully of 
both theory and practice as applied to steam engines but most 
largely with stationary engines. 


Encouraging Support 

“The idea of these “service courses” met with the approval of the 
heads of the institutions concerned. The response was encouraging 
as the following extracts from letters from superintendents of state 
institutions and presidents of normal schools will show: 

“I have your note calling my attention to the course ar¬ 
ranged for engineers and firemen in the state service. This is 
decidedly a step in advance and I am sure that greater and bet¬ 
ter service will be rendered the state because of this scheme of 
education. 

“I thoroughly approve of all our men acquiring a theoretical 
as well as a working knowledge of their duties, and have inti¬ 
mated plainly to them through the chief engineer, that in 
advancing their places we shall give preference to those who 
show an ambition to advance in their work, and are willing to 
study toward that end. 


Real Cooperation 

“The chief engineers of the institutions have cooperated in a 
most encouraging fashion in interesting their men in the work. A 
letter was sent to each chief engineer, putting up to him the 
responsibility for the success of the work in his institution. As a 


✓ 


— 46 — 


result forty-one engineers and firemen registered in one or another 
of these courses. Professor Shealey declares that during his ex- 
i)erience in extension work he has never had such a uniformly high 
grade of work done by any class of employes.” 

From Industrial Management, February, 1918. 


Rural Highway Work 

The Civil Service Commission has also been instrumental in the 
development and offering of a course in rural highway work by the 
Extension Division of the University, to meet the needs of the men 
working on the Wisconsin roads under the new trunk line system. 
The following is quoted from the circular issued by the Extension 
Division: 

“The Extension Division has had the hearty cooperation of 
the State Civil Service Commission in the development of this 
course, and in order that it might be of the fullest value to Wis¬ 
consin road workers, the division arranged with the Wisconsin 
Highway Commission, not only to approve the course, but to 
assist in selecting the matter to be covered and cooperate in 
writing the assignments. The following employees of the 
Highway Commission have assisted in preparing this course of 
study: 

A. L. Hirst, State Highway Engineer, 

J. T. Donaghey, Maintenance Engineer, 

M. W. Torkelson, Office and Bridge Engineer, 

H. J. Kuelling, Construction Engineer, 

G. F. Daggett, Engineer of Survey and Plans.” 

Plans for the Future 

The plan for training those in the public service is a marked suc¬ 
cess. The Commission hopes that in the near future it will have 
worked out with the University Extension Division complete and 
well-organizecT courses of study bearing on the duties of each type 
of employe in the state service. The Commission feels that a plan 
of this type will be of very material help in raising the standard of 
state service. Such courses of study should be sr grouped and ar¬ 
ranged that their pursuit will work itself out automatically, and fur¬ 
ther, they may be considered as a regular and important part of the 
work offered by the University. 


ORGANIZATION AND WORK OF THE OFFICE 


OF THE 

CIVIL SERVICE COMMISSION 


The work of the Wisconsin Civil Service Commission under the 
general direction of the secretary and chief examiner falls into 
three divisions, the work of each being suggested in the following 
outline: 


Examination Division. 

Looks after advertising (newspapers, announcements, etc.) 

Arranges for examinations 

Prepares examination questions 

Conducts examinations 

Marks examination papers 

Prepares eligible lists. 

Oertification Division 

Certifies eligibles from list 
Looks up availability of candidates 
Interviews office callers 
Keeps roster cards up to date 
Certifies pay rolls 

Service Division 

Keeps service records of employes 
Collects and interprets service statistics 
Prepares and edits department bulletins and reports 
Investigates claims of inefficiency and unfair treatment 
Determines proper classification of service positions accord¬ 
ing to duties performed 

Arranges with university for practical training courses for 
employes 

In general each division concerns itself chiefly with a different 
group, as indicated below: 

Examination Division with Prospective candidates for service. 
Certification Division ” Candidates eligible for service. 

Service Division ” Employes in the service. 




— 48 


ORGANIZATION OF THE CIVIL SERVICE OFFICE FORCE 



Table of Appointments of Civil Service Commissioners of Wisconsin 


1905 

Otto Gaffron 

T. J. Cunningham 

Samuel E. Sparling 


Plymouth 

Chippewa Falls 

Madison 

1907 

7f 

9999 99 

C. E. Buell 

Madison 

1909 

9 7 79 

reappointed 

99 99 99 

1911 

reappointed 

99 99 99 

99 99 99 

1913 

9 9 99 

9999 99 

Percy Ap Roberts 
Hudson 

1915 

9 9 9 9 

Lewis G. Kellogg 
Ripon 

99 99 99 

1917 

F. W. Coon 
Edgerton 

99 99 99 

99 99 99 


Secretaries 

F. E. Doty 1905-1913. 

John A, Hazelwood 1913—to date. 


















— 49 


Office Files and Records 

* 

The files of an office are a good index of the work of the office. 
They also help to make clear the organization and methods of the 
office. For these reasons a brief outline of the files of the Civil 
Service Commission’s office follows: 

Applications 

In these files may be found the application blanks filled out 
by every person who ever applied for examination. Inside the 
application which is used as a folder and filed vertically may 
be found the examination papers of the candidate, his recom¬ 
mendations, and all correspondence from him. The confiden¬ 
tial papers are clipped together and may not be shown candi¬ 
dates but candidates may at any time come to the office and 
look over their examination papers and secure explanation of 
the marks given. 

Applicant Cards 

A card is made out for each person who applies for examina¬ 
tion. On this card is given the date of application, date of 
examination, grade, rank, kind of examination, and file case 
and folder in which his papers may be found. This file serves 
both as an information file and as an index to the application 
file described above. These cards are arranged alphabetically. 
In the file are about 37,250 cards, indicating the number of 
different applicants for state positions since the civil service 
law was passed in 19 05. Many have applied for and taken 
examination for several positions. These are all recorded on 
the same card. 

Roster Cai’ds 

y A roster card is made out for each person who enters state 
service. On this card is indicated the department or institu¬ 
tion in which the person is employed, the date of beginning 
service, salary, dates of increase with amount, or dates of trans¬ 
fer or leaving service. These cards are used in checking pay 
rolls and are filed by departments and institutions. When a 
person leaves service his roster card is placed alphabetically 
in a discard file. 

Biennial Cards 

Each change in service-entrance, transfer, promotion, new 
position, salary advance, resignation, etc.,—is recorded on a 
separate biennial card, which is filed alphabetically and used 
in compiling statistical tables. 

Service Reports 

The commission keeps service reports on the work of each 
employe in the classified service of the state. These reports 
are filed by departments. 


50 


Record of Duties 

In the files of the commission there is a report on the duties 
of each position in the classified service. These are filed by 
departments and are made use of in the classification of em¬ 
ployes and in giving official reports on the special duties of 
any position. See page 2 5. 

History Cards 

The history card contains a complete record of each employe 
in the classified service. There is, however, in this file a card 
for every person employed by the state except faculty members 
of the university and state normal schools. These cards are 
colored to indicate the statutory classification of the employe. 
The cards are filed by positions and are used to secure data 
quickly on different functional and statutory classes of em¬ 
ployes as to salary, length of service, examinations passed, 
age, schooling, record in service, etc. 

Examination Questions 

The commission maintains a complete file, by positions, of 
examination questions issued by both this and other com¬ 
missions. 

Mailing List 

Whenever a person writes in or asks concerning certain ex¬ 
aminations not then announced his name and address are placed 
on a card together with the name of the position in which he 
is interested. This card is filed by position and when such 
examination is announced application blanks are sent to all 
names appearing under such examination. A similar list is 
maintained for persons interested in the publications of the 
commission. 

Aside from the above the commission maintains the correspond¬ 
ence and other files necessary to the operation of any office. 


Answers* to Questions Frequently Asked 

Competitive positions in the state service are open to residents of 
Wisconsin only. 

There are no regular dates fixed for examinations. Their frequency 
depends upon the needs of the service. 

Inquiry concerning examinations is invited. Those interested are 
asked to state clearly the kind of examination in which they 
are interested, and if they have an application blank on file in 
this office, to mention it. 

Persons not familiar with the workings of the Civil Service Com¬ 
mission, who desire information, are asked to indicate their 
educational qualifications as well as the line of work in which 
they have been engaged. More specific information can then 
be furnished them. 

If the examination to which a person refers is not scheduled, his 
name will be placed on a mailing list for that examination. 


As soon as an examination is scheduled, those whose names are on 
the mailing list for that examination and those who write in 
concerning such examination after it is scheduled are promptly 
sent application blanks and all necessary information. 

Candidates are asked to act promptly on receipt of notice. Exami¬ 
nations at county seats may be limited to those from whom 
applications are recived sufficiently early to make possible the 
necessary arrangements and shipment of papers. 

All persons who have filled out application blanks and mailed them 
to the Commission receive at the proper time admission cards 
to the examination they wish to enter, giving time, place of ex¬ 
amination and the building in which it will be held. 

Each applicant presents his admission card to the examiner in charge 
in order to be admitted to the examination. 

All competitors receive notice of their standing, whether they pass 
or fail. From one to three months may elapse before such 
notice is received. 

The period of eligibility for all positions is one year, unless ex¬ 
tended through special action of the Commission. 

Plligibles are requested to keep the Commission informed of any 
change in post-office address. 

Prospects of appointment vary with different lists. 

A. candidate is not certified to a position paying less than the mini¬ 
mum indicated by him in his experience paper. 

Passing an examination does not guarantee certification to a posi¬ 
tion nor appointment. 

The nearer a competitor’s mark is to one hundred per cent, the 
better are his chances for appointment before his term of 
eligibility expires. 

The Civil Service Commission certifies three names for each posi¬ 
tion filled. Appointment of one is made by the officer to whom 
the list is certified. 

Acceptance of a temporary appointment does not affect the rights 
of an eligible to have his name certified to a permanent posi¬ 
tion whenever his name is reached on the eligible list. 

All appointments are made on probation for a period of one, two or 
three months. 

In case an eligible certified for appointment on probation declines 
appointment, his name is stricken from the list and may be 
restored to said list only at the discretion of the Commission 
upon his written request, stating his reasons for such declina¬ 
tion. 


— 52 — 


A KNOWLEDGE OF CIVIL SERVICE 


The Civil Service Commission wants the people of Wisconsin to 
know more of its work. The more they know of its work the more 
effective it can be. The part played in democracy by the civil 
service is being discussed today as never before. 

Women’s Clubs and the Civil Service 

During the past year the committee on civil service for the 
Women’s Clubs of the state has taken active steps to promote the 
study and discussion of the problems of the civil service. 

Vocational Conferences 

The Commission has been represented at various vocational con¬ 
ferences. Here there has been a chance to set forth the openings 
and opportunities in the public service and many young people have 
been interested. 


At the State Fair 

For two years the Commission has had an exhibit in the Educa¬ 
tion Building at the state fair and through this means has given a 
large number of people a better knowledge of the civil service of the 
state. In this way the Commission also gets in touch with possible 
candidates for state service. 

Essay Contest 

High school students are becoming interested in the subject of the 
civil service. An annual essay contest is conducted, open to all high 
school students of the state. The Wisconsin Civil Service League 
has furnished a beautiful silver trophy cup as first prize. This cup 
is held by the school represented by the contestant winning first 
place in the contest. 



— 53 — 


The following schools have been represented in the contest during 
the past four years: 


\ 


Almond 

Arena 

Athens 

Barron 

Beaver Dam 

Bloomington 

Cashton 

Cassville 

Chilton 

Chippewa Falls 

Cleveland 

Crandon 

Dodgeville 

Eden 

Elmwood 

Pall Creek 

Fond du Lac 

Galesville 

Gilman 

Glenbeulah 

Green Lake 

Hayward 

Jefferson 

Kenosha 

Kewaunee 

Kiel 

La Crosse 
Ladysmith 
Laona 
Leon 



THE TROPHY CUP 
Held in 1918 by Oconomowoc High School. 

Loyal 

Manitowoc 

Mattoon 


Menomonie 
Middleton 
Milwaukee, N. Div. 
Milwaukee, S. Div. 
Milwaukee, W. Div. 
Milwaukee, Wash. 
Mountain 
Neenah 

North Freedom 

Oconomowoc 

Oconto 

Oshkosh 

Pardeeville 

Park Falls 

Plainfield 

Prescott 

Princeton 

Random Lake 

Reedsburg 

Rib Lake 

Rock Elm 

Shell Lake 

Spooner 

Stevens Point 

Two Rivers 

Watertown 

Waupaca 

Wauwatosa 

Whitewater 

Wild Rose 


The Civil Service Commission furnishes to each school entered, 
material to be consulted by contestants. 


V 






— 54 


In Conclusion 

The Wisconsin Civil Service Commission is at all times glad to 
answer the questions of the citizens of the state. It is always 
ready to furnish reference material, printed matter and publications 
to those studying the subject of public service. The commission 
wishes to encourage open and frank discussion of the subject. 

The offices of the Commission are in the State Capitol at Madison. 
Here the citizens of Wisconsin—the stockholders in the public busi¬ 
ness of the state—will find a cordial welcome. Here they may 
learn at first-hand what their employment and personnel department 
is doing toward carrying on their business in an efficient way. 























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